Clinton’s agencies deliberately prolonged congressional paralysis to avoid hostile legislation.

Evidence

The executive branch, however, also took its action for the deliberate purpose of prolonging the congressional stalemate. Clinton administration officials, especially within the EPA and the Department of the Interior, did not want congressional action. Indeed, they feared the kinds of laws that Congress might pass, especially the 104th, 105th, and 106th Congresses. A presidential veto was, of course, an option, but never a sure thing. The president’s willingness to veto a particular bill does not turn so simply on the recommendations of his cabinet and subcabinet officers. There are always broader political ramifications that must be taken into account in deciding whether to exercise that singular authority. In addition, legislative enactments are frequently bundled in a manner intended to make it even harder for the president to veto, by combining in one package matters that the president supports with matters he opposes. — Richard J. Lazarus, The Making of Environmental Law, 692